[Federal Register Volume 81, Number 110 (Wednesday, June 8, 2016)]
[Rules and Regulations]
[Pages 36791-36793]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-13455]


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DEPARTMENT OF STATE

22 CFR Parts 35, 103, 127, and 138

[Public Notice: 9536]
RIN 1400-AD94


Civil Monetary Penalties Inflationary Adjustment

AGENCY: Department of State.

ACTION: Final rule.

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SUMMARY: This final rule is issued to adjust the civil monetary 
penalties (CMP) for regulatory provisions maintained and enforced by 
the Department of State. The Federal Civil Penalties Inflation 
Adjustment Act of 1990 (the 1990 Act), as amended by the Debt 
Collection Improvement Act of 1996 (the 1996 Act), required the head of 
each agency to adjust its CMPs for inflation no later than October 23, 
1996 and required agencies to make adjustments at least once every four 
years thereafter. The Federal Civil Penalties Inflation Adjustment Act 
Improvements Act of 2015 (the 2015 Act) further amended the 1990 Act by 
requiring agencies to adjust CMPs, if necessary, pursuant to a ``catch-
up'' adjustment methodology prescribed by the 2015 Act, which mandates 
that the catch up adjustment take effect no later than August 1, 2016. 
Additionally, the 2015 Act requires agencies to make annual adjustments 
to their respective CMPs in accordance with guidance issued by the 
Office of Management and Budget. The revised CMP adjustments in this 
rule will apply only to those penalties assessed after its effective 
date; subsequent annual adjustments are to be published not later than 
January 15 of each year. In keeping with guidance provided by the 
Office of Management and Budget, the new penalty levels will apply to 
all assessments made on or after August 1, 2016, regardless of the date 
on which the underlying facts or violations occurred.

DATES: This final rule is effective August 1, 2016.

FOR FURTHER INFORMATION CONTACT: Alice Kottmyer, Attorney-Adviser, 
Office of Management, [email protected]. ATTN: Regulatory Change, 
CMP Adjustments, (202) 647-2318.

SUPPLEMENTARY INFORMATION: The 1990 Act (Pub. L. 101-410) provided for 
the regular evaluation of CMPs by federal agencies. Periodic 
inflationary adjustments of CMPs ensure that the consequences of 
statutory violations adequately reflect the gravity of such offenses 
and that CMPs are properly accounted for and collected by the federal 
government. In April 1996, the 1990 Act was amended by the 1996 Act 
(Pub. L. 104-134), which required federal agencies to adjust their CMPs 
at least once every four years. However, because inflationary 
adjustments to CMPs were statutorily capped at ten percent of the 
maximum penalty amount, but only required to be calculated every four 
years, CMPs in many cases did not correspond with the true measure of 
inflation over the preceding four year period, leading to a decline in 
the real value of the penalty. To remedy this decline, the 2015 Act 
(section 701 of Pub. L. 114-74) requires agencies to adjust the level 
of CMPs with an initial ``catch-up'' adjustment through a rulemaking 
and to make subsequent annual inflationary adjustments to their 
respective CMPs using a methodology mandated by the legislation.
    The 1990 Act defines civil monetary penalty as any penalty, fine, 
or other sanction that:
     Is for a specific monetary amount as provided for in 
federal law; or has a maximum amount provided for by federal law; and
     is assessed or enforced by an agency as pursuant to 
federal law; and,
     is assessed or enforced pursuant to an administrative 
proceeding or a civil action in the federal courts.
    Within the Department of State (Title 22, Code of Federal 
Regulations), this rule affects four areas:
    (1) Part 35, which implements the Program Fraud Civil Remedies Act 
of 1986 (PFCRA), codified at 31 U.S.C. 3801-3812;
    (2) Part 103, which implements the Chemical Weapons Convention 
Implementation Act of 1998 (CWC Act);
    (3) Part 127, which implements the penalty provisions of sections 
38(e), 39A(c), and 40(k) of the Arms Export Control Act (AECA) (22 
U.S.C. 2778(e), 2779a(c), 2780(k)); and
    (4) Part 138, which implements Section 319 of Public Law 101-221, 
codified at 31 U.S.C. 1352, and prohibits recipients of federal 
contracts, grants, and loans from using appropriated funds for lobbying 
the Executive or Legislative Branches of the federal government in 
connection with a specific contract.
    The 2015 Act instructs agencies to make a one-time catch-up 
adjustment to CMPs using the maximum penalty level or range of minimum 
and maximum penalties as they were ``most recently established or 
adjusted under a provision of law other than [the 1990] Act.'' 
Nevertheless, the 2015 Act

[[Page 36792]]

specifies that the catch-up adjustment amount will in no case exceed 
150% of the penalty amount which was in force at the enactment date of 
the 2015 Act on November 2, 2015; therefore, the total revised penalty 
amount will not exceed 250% of the total maximum penalty amount on 
November 2, 2015.

Specific Changes to 22 CFR Made by This Rule

I. Part 35

    The PFRCA, enacted in 1986, authorizes agencies, with approval from 
the Department of Justice, to pursue individuals or firms for false 
claims. The maximum liability under the PFRCA is $5,000 for each false 
claim, up to a maximum of $150,000, in addition to twice the amount of 
the claim submitted contrary to the PFRCA.
    According to OMB guidance, the multiplier for the PFRCA (a 1986 
statute) is 2.15628; therefore, the new maximum penalty for each false 
claim or statement is $10,781, up to a maximum of $323,442.

II. Part 103

    The CWC Act provided domestic implementation of the Convention on 
the Prohibition of the Development, Production, Stockpiling, and Use of 
Chemical Weapons and on Their Destruction. The penalty provisions of 
the CWC Act are codified at 22 U.S.C. 6761. A person violating 22 
U.S.C. 6761(a)(1)(A), Prohibited acts relating to inspections, is 
subject to a civil penalty of an amount not to exceed $25,000 for each 
such violation. A person violating 22 U.S.C. 6761(a)(1)(B), 
Recordkeeping violations, is subject to a civil penalty in an amount 
not to exceed $5,000 for each such violation.
    According to OMB Guidance, the multiplier for the CWC Act (a 1998 
statute) is 1.45023. Therefore, the new maximum civil monetary penalty 
for prohibited acts relating to inspections is $36,256 for each 
violation; and the new maximum civil monetary penalty for recordkeeping 
violations is $7,251 for each such violation.

III. Part 127

    The Assistant Secretary of State for Political-Military Affairs is 
responsible for the imposition of CMPs under the International Traffic 
in Arms Regulations (ITAR), which is administered by the Directorate of 
Defense Trade Controls (DDTC). Each of the penalty provisions of the 
AECA provides that the CMP for each relevant violation may not exceed 
$500,000.
(1) AECA Section 38(e)
    The most recent statutory modification of the CMPs provided for 
under AECA section 38(e), 22 U.S.C. 2778(e), occurred in 1985 when the 
maximum penalty amount was capped at $500,000 per violation. According 
to OMB guidance, the multiplier for AECA section 38(e) is 2.18802; 
therefore, the new maximum penalty will be $1,094,010 per violation.
(2) AECA Section 39A(c)
    The most recent statutory modification of the CMPs provided for 
under AECA section 39A(c), 22 U.S.C. 2779a(c), occurred in 1994 when 
the maximum penalty amount was capped at $500,000 per violation. 
According to OMB guidance, the multiplier for AECA section 39A(c) is 
1.59089; therefore, the new maximum adjusted penalty level will be 
$795,445 per violation.
(3) AECA Section 40(k)
    The most recent statutory modification of the CMPs provided for 
under AECA section 40(k), 22 U.S.C. 2780(k), occurred in 1989 when the 
maximum penalty amount was capped at $500,000 per violation. According 
to OMB guidance, the multiplier for AECA section 40(k) is 1.89361; 
therefore, the new maximum adjusted penalty level will be $946,805 per 
violation.

IV. Part 138

    Section 319 of Public Law 101-121, codified at 31 U.S.C. 1352, 
provides penalties for recipients of federal contracts, grants, and 
loans who use appropriated funds to lobby the Executive or Legislative 
Branches of the federal government in connection with a specific 
contract, grant, or loan. Any person who violates that prohibition is 
subject to a civil penalty of not less than $10,000 and not more than 
$100,000 for each such expenditure. The statute also requires each 
person who requests or receives a federal contract, grant, cooperative 
agreement, loan, or a federal commitment to insure or guarantee a loan, 
to disclose any lobbying; the penalty for failure to disclose is not 
less than $10,000 and not more than $100,000 for each such failure.
    According to OMB guidance, the multiplier for 31 U.S.C. 1352 (a 
1989 statute) is 1.89361. Therefore, the new maximum civil violations 
under the statute, for both improper expenditures and failure to 
disclose, are: Not less than $18,936 and not more than $189,361.

Effective Date of Penalties

    The revised CMP amounts will go into effect on August 1, 2016. All 
violations for which CMPs are assessed after the effective date of this 
rule, regardless of whether the violation occurred before the effective 
date, will be assessed at the adjusted penalty level.

Future Adjustments and Reporting

    The 2015 Act directs agencies to undertake an annual review of CMPs 
using a formula prescribed by the statute. Hereafter, annual 
adjustments to CMPs will be made in accordance with the guidance issued 
by OMB. The Department of State will publish notification of annual 
inflation adjustments to CMPs in the Federal Register no later than 
January 15 of each year, with the adjusted amount taking effect 
immediately upon publication. Furthermore, OMB Circular A-136, 
Financial Reporting Requirements, directs agencies to identify any 
changes to CMPs in the Agency Financial Report (AFR), including the 
affected penalties, dates and amounts of adjustments, and applicable 
statutes and regulations.

Regulatory Analysis and Notices

Administrative Procedure Act

    The Department of State is publishing this rule using the ``good 
cause'' exception to the Administrative Procedure Act (5 U.S.C. 
553(b)), as the Department has determined that public comment on this 
rulemaking would be impractical, unnecessary, or contrary to the public 
interest. This rulemaking is mandatory; it implements Public Law 114-
74.

Regulatory Flexibility Act

    Because this rulemaking is exempt from Section 553 of the 
Administrative Procedures Act, a Regulatory Flexibility Analysis is not 
required.

Unfunded Mandates Reform Act of 1995

    This rule does not involve a mandate that will result in the 
expenditure by State, local, and tribal governments, in the aggregate, 
or by the private sector, of $100 million or more in any year and it 
will not significantly or uniquely affect small governments. Therefore, 
no actions were deemed necessary under the provisions of the Unfunded 
Mandates Reform Act of 1995.

Small Business Regulatory Enforcement Fairness Act of 1996

    This rule has been found not to be a major rule within the meaning 
of the Small Business Regulatory Enforcement Fairness Act of 1996.

Executive Orders 12372 and 13132

    This rulemaking does not have sufficient federalism implications to 
require consultations or warrant the preparation of a federalism 
summary

[[Page 36793]]

impact statement. The regulations implementing Executive Order 12372 
regarding intergovernmental consultation on federal programs and 
activities do not apply to this rulemaking.

Executive Orders 12866 and 13563

    The Department believes that benefits of the rulemaking outweigh 
any costs, and there are no feasible alternatives to this rulemaking. 
It is the Department's position that this rulemaking is not an 
economically significant rule under the criteria of Executive Order 
12866, and is consistent with the provisions of Executive Order 13563.

Executive Order 12988

    The Department of State has reviewed the proposed amendment in 
light of Executive Order 12988 to eliminate ambiguity, minimize 
litigation, establish clear legal standards, and reduce burden.

Executive Order 13175

    The Department of State has determined that this rulemaking will 
not have tribal implications, will not impose substantial direct 
compliance costs on Indian tribal governments, and will not preempt 
tribal law. Accordingly, Executive Order 13175 does not apply to this 
rulemaking.

Paperwork Reduction Act

    This rulemaking does not impose or revise any information 
collections subject to 44 U.S.C. Chapter 35.

List of Subjects

22 CFR Part 35

    Administrative practice and procedure, Claims, Fraud, Penalties.

22 CFR Part 103

    Administrative practice and procedure, Chemicals, Classified 
information, Foreign relations, Freedom of information, International 
organization, Investigations, Penalties, Reporting and recordkeeping 
requirements.

22 CFR Part 127

    Arms and munitions, Exports.

22 CFR Part 138

    Government contracts, Grant programs, Loan programs, Lobbying, 
Penalties, Reporting and recordkeeping requirements.

    For the reasons set forth above, 22 CFR parts 127, 35, 103, and 138 
are amended as follows:

PART 35--PROGRAM FRAUD CIVIL REMEDIES

0
1. The authority citation for part 35 is revised to read as follows:

    Authority:  22 U.S.C. 2651a; 31 U.S.C. 3801 et seq.; Pub. L. 
114-74, 129 Stat. 584.



0
2. In Sec.  35.3:
0
a. Remove ``$5,000'' and add in its place ``$10,781'', wherever it 
occurs.
0
b. Add paragraph (f) to read as follows:


Sec.  35.3  Basis for civil penalties and assessments.

* * * * *
    (f) The maximum penalty for each false claim or statement is 
$10,781, up to a maximum of $323,442.

PART 103--REGULATIONS FOR IMPLEMENTATION OF THE CHEMICAL WEAPONS 
CONVENTION AND THE CHEMICAL WEAPONS CONVENTION IMPLEMENTATION ACT 
OF 1998 ON THE TAKING OF SAMPLES AND ON ENFORCEMENT OF REQUIREMENTS 
CONCERNING RECORDKEEPING AND INSPECTIONS

0
3. The authority citation for part 103 is revised to read as follows:

    Authority:  22 U.S.C. 2651a; 22 U.S.C. 6701 et seq.; Pub. L. 
114-74, 129 Stat. 584.


Sec.  103.6  [Amended]

0
4. Amend Sec.  103.6 to remove ``$25,000'' and add in its place 
``$36,256'' in paragraph (a)(1), and to remove ``$5,000'', and add in 
its place $7,251'' in paragraph (a)(2).

PART 127--VIOLATIONS AND PENALTIES

0
5. The authority citation for part 127 is revised to read as follows:

    Authority:  Sections 2, 38, and 42, Pub. L. 90-629, 90 Stat. 744 
(22 U.S.C. 2752, 2778, 2791); 22 U.S.C. 401; 22 U.S.C. 2651a; 22 
U.S.C. 2779a; 22 U.S.C. 2780; E.O. 13637, 78 FR 16129; Pub. L. 114-
74, 129 Stat. 584.

0
6. Section 127.10 is amended by revising paragraph (a) to read as 
follows:


Sec.  127.10  Civil penalty.

    (a)(1) The Assistant Secretary of State for Political-Military 
Affairs is authorized to impose a civil penalty, as follows:
    (i) For each violation of 22 U.S.C. 2778, an amount not to exceed 
$1,094,010;
    (ii) For each violation of 22 U.S.C. 2779a, an amount not to exceed 
$795,445; and
    (iii) For each violation of 22 U.S.C. 2780, an amount not to exceed 
$946,805.
    (2) The civil penalty may be either in addition to, or in lieu of, 
any other liability or penalty which may be imposed.
* * * * *

PART 138--NEW RESTRICTIONS ON LOBBYING

0
7. The authority citation for part 138 is revised to read as follows:

    Authority:  22 U.S.C. 2651a; 31 U.S.C. 1352; Pub. L. 114-74, 129 
Stat. 584.


Sec.  138.400  [Amended]

0
8. Amend Sec.  138.400 by removing ``$10,000'' and ``$100,000'', and 
adding in their place ``$18,936'' and ``$189,361'' respectively, 
wherever they occur.

    Dated: June 1, 2016.
Lisa Aguirre,
Managing Director, Directorate of Defense Trade Controls Department of 
State.
[FR Doc. 2016-13455 Filed 6-7-16; 8:45 am]
 BILLING CODE 4710-25-P